The Kakodkar Committee report on railway safety is likely to meet the fate of many other committee reports, particularly because of the huge scale of investment it proposes in a short time span.
A little over two years after the publication of the Vision 2020 document aimed at catapulting the Indian Railways (IR) into the forefront of world railways, the Kakodkar Committee on railway safety has just published its report, with plans that require an outlay of Rs. 1 lakh crore. And even as that committee's recommendations are being digested, the Sam Pitroda Committee has submitted its plans for the modernisation of IR at a cost of Rs.5.6 lakh crore. In the midst of a severe resource crunch, it would seem that the Railways are faced with a problem of plenty by way of multi-lakh crore rupee plans!
Financial implications
While the Kakodkar Committee has produced a comprehensive report on railway safety within six months — a record of sorts — with many useful and refreshingly novel recommendations, it is in the area of funding its proposals that the Committee's projections are literally “out of this world.” The IR's Vision 2020 (2009), which is yet to take off, envisages an annual outlay of Rs.1.4 lakh crore over a decade with an estimated annual gross budgetary support (GBS) of Rs.50,000 crore by the Central government. Now the Kakodkar Committee has recommended an annual investment of Rs. 20,000 crore for five years, of which Rs.10,000 crore is effectively a GBS by way of a matching Central grant and deferred dividend. In the past, the GBS has not exceeded Rs.20,000 crore in a year. Therefore, expecting a 300 per cent hike in GBS (Rs.20,000 crore to Rs.60,000 crore for Vision 2020 and the Kakodkar Safety Plan put together) for just one sector of the economy from a government facing multiple competing demands and severe fiscal constraints is, to put it mildly, in the realm of fantasy. Such projections only serve to spread cynicism all round.
A report that clicked!
The Kakodkar Committee was set up in the aftermath of the derailment of Kalka Mail near Fatehpur in July 2011, resulting in the death of 71 passengers and injuries to 264, and a few other serious accidents. History repeats itself. About 14 years ago, a similar committee headed by Justice H.R. Khanna was set up in the aftermath of another major derailment in September 1997 (Derailment of Train No.8033, the Ahmedabad-Howrah Express , killing 88 and injuring 400).
However, contrary to the fate of most committee reports, the recommendations of the Khanna Committee were taken seriously and followed up to a large extent. In fact, the Special Railway Safety Fund (SRSF) of Rs.17,000 crore set up in 2001 and the Corporate Safety Plan 2003-2013 (CSP) unveiled in August 2003 arose out of the recommendations of the Khanna Committee.
While reviewing the safety performance of IR over the last five years, the Kakodkar Committee has not highlighted the fact that the target set in CSP 2003 for reducing the frequency of consequential accidents from 0.44 to 0.17 accidents per million train kilometres has already been bettered. The irony is that even as one more report seeking funds in lakhs of crores of rupees to improve safety on the Railways has been presented, there has been no attempt so far to find out what went right after investing Rs.17,000 crore in six years through the SRSF.
What price safety?
The Kakodkar Committee has made a number of references to “zero tolerance” to accidents. While this is a commendable ideal to strive for, achieving it is almost impossible unless there is access to unlimited resources. In contrast, CSP 2003 had, for the first time, prescribed target rate of accidents overall (the number of accidents per million train kilometres) and target reductions in numbers in different types of accidents, sought to be achieved by the end of the CSP period (2012-13). The only category for which the target was specified as zero was train collisions, on the (misplaced) expectation that the Anti-Collision Device (ACD) or the Raksha Kavach would be successfully introduced all over the system by the end of the CSP period.
This leads to the question: “What price railway safety?” The Kakodkar Committee has proposed an investment of Rs.50,000 crore solely on the removal of all level-crossings, for completely eliminating LC-related accidents and casualties. The average number of persons killed in LC accidents over the five-year period 2006-07 to 2010-11 was 145 (According to KCR, the number of persons killed in all types of consequential train accidents over the five-year period was 1,227. Fifty-nine per cent of this was due to level crossing accidents, which work out to 724 in five years or 145 per year.) This works out to approximately Rs.70 crore for averting each death at a level crossing. It may be argued that human life is priceless but the moot point is whether this order of magnitude of investment is practically feasible or even justified in a climate of extreme scarcity of resources.
Organisational change
The Committee's recommendation suggesting organisational changes in the Railway Board for creating a more responsive and effective “ecosystem” for safety on the Railways, while laudable, is overly optimistic. No organisation voluntarily commits “hara-kiri”. The fate of the Indian Railways Report (2001), better known as the Rakesh Mohan Committee Report, is too recent and well known to need recounting here.
The Committee has rightly drawn attention to the “implementation bug” afflicting the Railways. A related disease not mentioned is the “acute policy shift syndrome” (APSS). With each change of government at the Centre or the Minister, there is a tendency to view with suspicion, if not outright contempt and ridicule, the policies of the previous regime and to reverse them. A recent example of the APSS syndrome is the fate of the Anti-Collision Device. What was perceived to be the lynchpin of the strategy to eliminate all collisions by the end of the CSP period has been reduced over a decade to almost a footnote in the Kakodkar Report.
National Railway policy
If implementation efficiency is to improve, there has to be a broad consensus across the political spectrum on key policy issues concerning the Railways such as the growth strategy, organisational issues, financial structure, safety related investments, fare and tariff policy and meeting public service obligations. If there can be a National Telecom Policy, why not a National Railway Policy?
Need for Plan B
While the Kakodkar Committee has brought in fresh perspectives in a number of areas concerning railway safety, there is a real danger that the report will meet the fate of many other committees and reports concerning the Railways, particularly because of the huge scale of the proposed investments within a short time span. It is, therefore, essential to have a ‘Plan B' ready with more realistically achievable targets and investment profile. Near total elimination of train collisions and consequential casualties is obviously one area that needs to be prioritised in such a plan.
Interestingly, two key recommendations of the Kakodkar Committee require no investment at all: an immediate end to the practice of announcing a “laundry list” of new train services in every Railway budget and increase in passenger fares. Will the Railway Minister display his commitment to implementing the recommendations of a committee constituted under his watch, by announcing the acceptance of at least these two recommendations in the Railway budget?
(K. Balakesari is former Member Staff, Railway Board. Email: balakesari_k@hotmail.com)
Keywords: Kakodkar Committee, railway safety, train collisions, Railway budget, Indian Railways, Railway Board, Indian Railways Report, National Railway policy
I remember some years back they jacked up all prices by Re.1 (including platform ticket) saying that it will be used for improving safety in railways. What the hell did they do with that money ????
Although India makes a tall claim of having the largest rail network, safety and quality wise, it is miserable.Trains are being run and zones are being created for political mileage rather than needs. Unfortunately, such zones focus only in developing it's immediate surroundings. As a result of this, the developments are non-uniform and the politically mighty states grabs everything. Some of the best profit making trains are in deplorable condition.The toilets are stinky, the seats /berths are rock - hard, infested with rodents and cockroaches. Undoubtedly, a journey in the "Netravati Express" will prove all the above !
It was very interesting to read how Balakesari has put across his views on the cost of human life and how much it's worth to invest in such a plan. Leaving aside all other suggestions, a sum of 50K crore to fix all the level crossings in India is certainly something to ponder about. These level crossings exist even in the remotest part of India and it would be wise to analyze how much of difference would removal of LC's make knowing that people in metros jump over road dividers just to avoid over bridges.
The article is well written but does not educate the readers beyond a point. Like the ACD, we were told that its invented by Konkan railways, so essentially an in-house product and does not need heavy license fees. If produced en-mass it must be cheap, Why is it not fit in the trains yet ? we should be told the reasons, is it not working up to expectation or anything ? Secondly why no one talks of efficiency in government organization , how long can we afford to run them inefficiently ? Just look at railways , there is no automation and they are grossly overstaffed with so many administrative divisions, but they seem to not afford modern SCADA systems. Why no one questions that? Railways just claims thousands of crore expenditure on a project, but no one seems to ask justification and look for wastage there.
Such committee members should travel in all classes in trains throught the length and breath of the country and acquire a first hand knowledge of what is lacking in the Indian Railways regarding track safety,safety in running,passanger safety and not the least the loco pilot safety.Then only a realistic and workable solution could be found.The Safety of the exchequer should also be kept in mind.Mindless budgetting will only derail the committee's intent.Otherwise it will attract the wrath of common public,as in the case of Mr.Montek Singh Ahluwalia's escapade in determining the minimum amount prescribed for a day's urban and country living.We need experts who are humane and not fliers on a Persian carpet.
Whether Rs.1 lakh crore or Rs.5.6 lakh crore, where would we get a Duryodhana (a wizard in handling finances, and absolutely incorruptible) or a Rhadamanthus to administrate it?
The number of zeros in the image should be 12 not 13 otherwise it would
be 56 lakh crore not 5.6
It is not practical to eliminate level crossings, they are there all over Europe and USA as well. What is needed is discipline in the people. To bring that, advertisements and building awareness is the only way. It is interesting to note that such socially relevant advertisements appear only on DD, all the private media has divorsed social relevance long back. The Central Government needs to bring in a law stating that a certain amount of air time and print space of media will be reserved for socially relevant advertisements and awareness. The government need NOT pay for these advertisements. Candidates will be adertisements like the ones regarding safety at level crossings, defensive driving, family planning etc. Once the private media enterprise joins hands with the government (even if that requires some goading) it will do wonders with insigificant investment.
The outcome of kakodkar committe is good but why there is a need of 1lakh crore rupees or more.Just to eliminate LC accidents they are allocating an amount of 70crore per one live.The money indian railways is losing through ticketless passengers and unfair TC's is a lot,try to avoid such things by making a good organisation which in turn creates a way to succeed the fate of all committees.without a good and stern organisation,no kakodkar or pitroda will help the indian railways.
When it comes to implementation of safety related works Railways had been behind target mainly because the maintenance organisation which is to implement has to work under a number of constraints one of which is the need to work on an active line carrying heavy traffic. Hence even if money is alloted the concerned departments can not make use of it at a higher rate of spending.
As there is a resource crunch and it becomes pragmatically difficult to implement kakodkar committee plan, first the Indian railways should start with a minimum hike in the travel charge which makes a lot to the kakodkar committe plan.It is the organisation which plays a major role in changing the fate of Indian railways.So,it is better to implement a good hierarchical organisation with morale values.we the people of India are always ready to see the Indian railways at pinnacle in the list of world railways.
The Indian Railways, arguably the world's most unsafe railway, should print this advisory on every railway ticket: "Travel at your own risk against robbery, murder, abduction, rape and accidents." A fundamental item like amalgamating the RPF and the GRP in order to ensure accountability by having just one organisation responsible for all aspects of railway crime has been rejected time and again. We should privatise the railways like they were during the British days.
While I agree that eliminating all level crossings is expensive,
surely other methods which are much less expensive can be adopted.
Using mobile communication it should be possible to ring alarm bells
sensing the arrival of a train and even provide a closing/opening bar
gate. To reduce, if not eliminate, the 400 annual deaths taking
place in Mumbai's tracks does not need huge expenditure, but
effective policing, enough bridges, continuous supervision can pay
huge dividends.
For the good of Indian railways and help it earn some revenue it is
amply essential this budget railway minister comes up with some idea of
tightening the ticket checking policy. Without-ticket traveling is
treated as an exhibition of bravery and act of hero among youth! Even
if without ticket travelers are caught, very rarely as ticket checking
nut-volts are dilapidated, they have their ways in some fifty or
hundred rupees. These money go to inflate the purse of TTs. This needs
to be stopped. And this can be done without needing an access to some
unlimited and divine funds! Tightening this policy supplemented with
getting into operation all the dis-functional and mis-functional ticket
counters will certainly smooth the revenue channel of railways. This
practice is rampant in small railway stations as well as so called
large and sophisticated railway stations.
What is the maximum distance between two stations? What is the maximum number of unmanned LC gates between two station? What is the maximum distance between a station and an unmanned LC gate? A loudspeaker can be set at such LC gates that can be operated from station and alert announcement can be made observing and according to train speed a minute or two in advance! It will not take too much investment and certainly reduce accidents! But the railway authority will say it is a childish talk!
Journey by train is getting more miserable day by day. Perhaps it is now easier to win lottery than getting confirmed ticket of rail travel.
National Railway Policy is very welcome suggestion. For the rest, like safety related issues, those big numbers in article doesn't make any sense to the common man, just provide us confirmed seat on the train & if possible, a "safe" journey.
Last but not least, humble request to Kakodkarji, Balakesari & Hon'ble Rail Minister, please travel by General Class sometime to get first hand experience of Great Indian Railway. Thank you.
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